Increasing digital channel use amongst digitally excluded Jobcentre Plus claimants

Transcription

1 Research report Increasing digital channel use amongst digitally excluded Jobcentre Plus claimants by Duncan Adam, Vicky Campbell-Hall, Dr Maria de Hoyos, Anne E. Green and Dr Andrew Thomas

2 Department for Work and Pensions Research Report No 776 Increasing digital channel use among digitally excluded Jobcentre Plus claimants Duncan Adam, Vicky Campbell-Hall, Dr Maria de Hoyos, Anne E. Green and Dr Andrew Thomas A report of research carried out by TNS-BMRB on behalf of the Department for Work and Pensions

3 Crown copyright You may re-use this information (not including logos) free of charge in any format or medium, under the terms of the Open Government Licence. To view this licence, visit or write to the Information Policy Team, The National Archives, Kew, London TW9 4DU, or This document/publication is also available on our website at: Any enquiries regarding this document/publication should be sent to us at: Department for Work and Pensions, Commercial Support and Knowledge Management Team, Upper Ground Floor, Steel City House, West Street, Sheffield S1 2GQ First published ISBN Views expressed in this report are not necessarily those of the Department for Work and Pensions or any other Government Department.

4 Contents iii Contents Acknowledgements... vii The Authors... viii Abbreviations and glossary... ix Summary Introduction Background Research aims Research design Research method Sampling approach Jobcentre Plus claimants Sampling approach Jobcentre Plus staff Sampling approach ERMs and digital partners Recruitment Fieldwork and Analysis Sample overview Report structure The digital landscape Claimant awareness of Jobcentre Plus digital services Current provision of support to claimants by Jobcentre plus staff The time allocated for adviser claimant contact Staff knowledge and familiarity with digital platforms Technical or legalistic restrictions Advisers concerns about the impact of a move to digital services Summary Enhancing Jobcentre Plus digital services Providing digital services through Jobcentre Plus Claimant views about specific Jobcentre Plus digital services Making digital services available... 19

5 iv Contents 3.2 Alternative digital channels Providing digital support to claimants through Jobcentre Plus Digital assessments PC, internet training and Jobcentre Plus digital services training Helpdesk Specialist equipment for people with disabilities Improving broadband access Providing digital support to claimants through external sources Friends and family External providers Organisations empowered to act on a claimant s behalf Other means of moving claimants online Additional suggestions for supporting claimants Providing an efficient and reliable online system Communicating Jobcentre Plus digital services Provision of online information and support in other languages Incentives for interacting with Jobcentre Plus online Summary Views about digital services Accessing digital services Supporting claimants through Jobcentre Plus Supporting claimants through external sources Other means of encouraging claimants online Additional suggestions for supporting claimants Engaging digitally excluded Jobcentre Plus claimants A behavioural classification of digitally excluded claimants Personal factors Social factors Environmental factors Engaging digitally excluded claimants with digital services... 39

6 Contents v Unaware Unready Uninterested Unable Supporting Jobcentre Plus claimants in their migration to digital services Supporting claimants in their migration to digital services The provision of support by staff Digital Champions Digital partners role in helping Jobcentre Plus support claimants Enhancing capability of Jobcentre Plus staff through training Training on digital channels and websites An objective on digital awareness in their development plans Security Information to understand the changes on the staff role Dissemination of information pertaining to digital services Summary Recommendations Short-term strategy recommendations Medium-term strategy recommendations Long-term strategy recommendations Appendix A Recruitment and sampling Appendix B Analysis and behavioural insight of qualitative material Appendix C Topic guides References List of tables Table 1.1 Achieved sample of Jobcentre Plus claimants Table 1.2 Achieved sample of Jobcentre Plus staff Table A.1 Jobcentre Plus staff achieved sample Table A.1 Jobcentre Plus claimant achieved sample... 55

7 vi Contents List of figures Figure 4.1 Factors influencing online behaviour Figure 4.2 Digitally excluded claimant groups Figure 6.1 Recommended strategies Figure B.1 Social marketing mechanisms... 60

8 Acknowledgements vii Acknowledgements This research was commissioned by Jobcentre Plus, in collaboration with the Department for Work and Pensions (DWP). We would like to thank Faye Clitheroe, Kris Simpson and Fatima Uzzaman at Jobcentre Plus for their advice and support with this study. We would also like to express our gratitude to those who participated in the research, both for the time they gave and the openness with which they expressed their views. Views expressed in this report are not necessarily those of the DWP or any other government department.

9 viii The Authors The Authors Duncan Adam (Research Associate Institute for Employment Research, University of Warwick) has experience of manipulating large scale data sets and quantitative analysis as well as qualitative research methodologies. He has a particular interest in the welfare to work agenda and has worked on the evaluation of the City Strategy initiative. Vicky Campbell-Hall (Research Manager, TNS-BMRB) has a particular interest in research with vulnerable groups such as victims of violence, those with mental health issues or disabilities and minority ethnicities. Recent research in this area includes a Department for Work and Pensions study exploring best practice for introducing informed claimant choice regarding contracted-out services. Dr Maria de Hoyos (Research Fellow, Institute for Employment Research, University of Warwick). Maria s research interests include learning and training, particularly in relation to their impact on individuals, organisations, etc; the ways in which personal, social, contextual and economic factors affect individuals working lives, young people s transitions into the labour market, and job search. Anne E. Green (Professorial Fellow Institute for Employment Research, University of Warwick). A geographer by background, Anne has substantial experience of researching employment and skills, non-employment, regional and local labour market issues, and migration and commuting. She has contributed to several evaluation and public policy studies, notably in relation to welfare to work and area regeneration initiatives. Dr Andrew Thomas (Director, TNS-BMRB). A psychologist by background, Andrew s main interest is in the interaction between the individual and the state, in particular, the system of state benefits, pensions, employment and housing. In addition, he also teaches qualitative research methods and has provided qualitative training courses for various government departments.

10 Abbreviations and glossary ix Abbreviations and glossary CV Digital Champions Digital Partners Digital Services DWP ERMs ESA FAQs IB IS JSA NHS ONS PAs PC TV Curriculum Vitae Jobcentre Plus advisers who have taken on additional responsibilities to provide digital support to staff and claimants. External organisations providing digital (and other) support to staff and claimants. Information and transactional services offered online, as well as the measures taken to support usage. Department for Work and Pensions External Relations Managers Employment Support Allowance Frequently asked questions Incapacity Benefit Income Support Jobseeker s Allowance National Health Service Office for National Statistics Jobcentre Plus Personal Advisers Personal Computer Television

11 Summary 1 Summary Background and methods The 2011/12 Jobcentre Plus delivery plan makes a commitment to develop and increase digital services 1, enabling claimants to self-serve but also creating the potential for a more comprehensive rich media service 2. Research shows there is a statistically significant association between the social disadvantages an individual faces and their inability to access and use digital services 3. Qualitative research was commissioned to develop an actionable approach to encourage digitally excluded claimants to use Jobcentre Plus digital channels, by increasing Jobcentre Plus understanding of: how to address the barriers to digital service usage; the behavioural strategies required to encourage digitally excluded claimants online; the types of services that claimants might value (which involved presenting claimants with examples of potential digital services); and the role of Jobcentre Plus staff and digital partners in supporting the migration of claimants to online services. For the purpose of this research, digitally excluded claimants are defined as individuals who never access the internet, or do so no more than three times a month, and lack confidence in their internet skills. Between April and June 2011, 80 face-to-face interviews with digitally excluded Jobseeker s Allowance (JSA), Income Support (IS), Employment and Support Allowance (ESA) and Incapacity Benefit (IB) claimants, 35 telephone interviews with Jobcentre Plus staff and five telephone interviews with external digital partners were undertaken and analysed thematically (further details are presented in Chapter 1). Key findings Awareness and use of digital services Digitally excluded claimants awareness of Jobcentre Plus digital services was low: none had registered online; and usage of services currently available was low. Views about current Jobcentre Plus digital services were mixed. For those who had used them, online job searching was the most enthusiastically received and there was some interest expressed in having the ability to track a 1 Digital services Information and transactional services offered online, as well as the measures taken to support usage. 2 Jobcentre Plus Delivery Plan 2011 to April Accessed online on 28th July 2011 at 3 Dutton, W. and Helsper, E. of the Oxford Internet Institute on behalf of Communities and Local Government, (2008) Digital Inclusion An Analysis of Social Disadvantage and the Information Society. P.9.

12 2 Summary benefit appeal online. However, those who were uninterested in finding employment or thought that their health condition prevented them from working (typically receiving IS, IB or ESA) expressed minimal interest in digital services. Attitudes towards extending the Jobcentre Plus digital offer Digitally excluded claimants views about a range of potential digital services were generally shaped by two overarching factors views about internet security and the potential value of the online service to them as an individual. For example: views about internet security impacted on reactions towards creating a claimant account and entering personal and financial information online; and the ability to create, save and print CVs held some interest for those looking for work, although most of these claimants felt that they had already undertaken this elsewhere, either at home or through a local library. Overall, the options to contact advisers, change personal details, report fraud or undertake betteroff-calculations online were seen as one-off transactions and of little interest. Those claimants, who were interested in looking for work, thought that Jobcentre Plus digital services should be made generally available online to enable access at home or through other organisations such as libraries. Claimants who regularly visited a Jobcentre Plus office expressed a preference for internet-enabled Personal Computers (PCs) to be located in Jobcentre Plus offices, rather than job points for reasons of greater internet connectivity and privacy. Overall, there was little enthusiasm for digital channels other than through a PC, job point (primarily for job search) or kiosks located with an external provider. Games consoles were not generally connected to the internet; there were also concerns about how one would enter information without a keyboard for both games consoles and digital television. Smartphones were generally too expensive for these claimants, although the ability to receive new job alerts by text to a standard mobile phone was thought to be a useful service. Supporting Jobcentre Plus claimants JSA claimants in particular were keen for an assessment of their digital skills and generally welcomed the idea of training to use the Jobcentre Plus digital services. Some would also welcome training on how to use a PC, sending and receiving s and using an internet browser. Claimants in receipt of ESA, IS and IB were much less interested in any form of computer or internet training unless they had a definite goal of finding work. Most claimants interested in receiving training welcomed the idea of group and one-to-one training sessions; although those who were least familiar and confident preferred one-to-one or one-to-two training sessions. Local Jobcentre Plus offices were thought to be ideal training venues, particularly for those who regularly attended. Depending on prior experience, training offered through external providers was also welcomed. In terms of providing ongoing support, most claimants expressed a desire for face-to-face support in local Jobcentre Plus offices, supplemented by telephone support. To accommodate those accessing digital services from outside the Jobcentre, telephone support was considered to be required from early morning to early evening, ideally with some weekend provision. Jobcentre Plus staff were varied in their understanding, usage and confidence in using PCs, online services and a range of digital platforms. Some did not have the confidence to even suggest to

13 Summary 3 claimants that they might try online services; while others were sufficiently confident to provide a quick demonstration of an internet browser. A number of staff lacked familiarity with the internet more generally, as well as the DirectGov website. Staff felt they were limited in what they could offer as they could not access external job searching websites, nor can they send CVs to employers on a claimant s behalf. Staff thought that they needed basic digital awareness training to be confident enough to raise claimants awareness of Jobcentre Plus digital services, give reassurance about the security of the Jobcentre Plus website and provide ongoing support. Staff with a particular interest in online services suggested that additional training would be required to provide the more specialised one-to-one and group training sessions that claimants were requesting. Digital Champions were thought to be especially well positioned to support claimants in this respect. Staff recognised however, that some claimants would require intensive, long-term support beyond the capacity of Digital Champions or trained staff. Digital partners were seen as a vital resource, in this respect. However, the services of digital partners were viewed as limited as they cannot currently access Jobcentre Plus digital services on a claimant s behalf. Conclusion In terms of their focus on finding work and their interest in using digital services, claimants can be classified into one of four types: unaware: these claimants were mainly recently unemployed and receiving JSA or ESA, with some experience of using the internet. A lack of awareness was the principle reason for their current failure to utilise Jobcentre Plus online services; unready: claimants who were longer-term unemployed, mainly in receipt of JSA or ESA and with little or no internet experience. Their key barriers to using Jobcentre Plus digital services were: a lack of awareness; little or no internet access; insufficient IT skills; and a lack of confidence in using the internet. Access to the internet via a Jobcentre Plus PC or kiosk, coupled with some tailored computer and internet training and face-to-face support, would enable this group of claimants to use digital services. In some cases they may need to be persuaded of the value of using the internet; uninterested: these claimants tended to be: long-term unemployed in receipt of JSA; older claimants nearing state pension age; and those with health problems that the claimant felt precluded them from working. They generally had minimal internet experience, and no interest in learning about the internet. These claimants would be the most challenging to move online. If Jobcentre Plus did want to move them online, persuasion or compulsion, coupled with computer and internet training alongside Jobcentre Plus/external provider support would be required; and unable: generally, these are long-term unemployed claimants in receipt of IS, IB or ESA for whom work was a very distant goal, if a goal at all. They had multiple barriers, including poor literacy and English language skills, often with health problems that limited their mobility. This group would need to be persuaded of the value of the internet, together with intensive, long-term, personalised support. As indicated above, Jobcentre Plus claimants vary considerably in their distance from using the internet, the amount of support they will need and the amount of time it will take before they become digitally active. Strategies are therefore required that operate over the short, medium and longer-term and target specific customer needs.

14 4 Summary In the short-term, there is a need to embed the digital message with claimants who regularly use Jobcentre Plus but are unaware of its digital services. This could be achieved through local marketing activities such as: posters and television screens in Jobcentre Plus sites; reference to digital services at all points of Jobcentre Plus contact and on signing cards; and giving out items such as pens and fridge magnets marked with the Directgov website. For all claimants, the most immediate requirement is a focus on job search facilities that better meet the needs of claimants. With a secondary focus on the ability to register online, create a claimant account and make and track a benefit claim or appeal (providing online security could be assured). New job updates, via texts to standard mobile phones, would be a welcome service. To support these developments, Jobcentre Plus staff will require training to: understand the role of digital services in everyday life and the role they can play in enhancing the job search process; and be an advocate for digital services. In addition, they would welcome development plan objective to raise their own and claimants digital awareness. In the medium-term there is a need to focus on enabling the Unready group of claimants who have little or no internet experience and for whom digital services are perceived to be of little relevance. These claimants would require wide ranging support in the form of: training to use a computer, an internet browser and facilities; how to access Jobcentre Plus digital services; and reassurance that online services are secure. Group training sessions would generally suffice, but for the less internet-literate, one-to-one or small group sessions would be required. These claimants required internet-enabled PCs either in Jobcentre Plus offices or other locations such as libraries, local organisations, and external providers. Bookable facilities with privacy ensured are paramount. Telephone and online support would generally suffice; but for claimants with lower levels of confidence, face-to-face support would still be required. Claimants with multiple barriers (Unable claimants) will require longer-term, personalised support. In addition to basic computer and internet training and ease of internet access, these claimants are also likely to require literacy and English language training. Training will need to be ongoing and supported by Jobcentre Plus staff or external training providers to build up claimants confidence in using the internet generally and Jobcentre Plus digital services specifically. Uninterested claimants are a varied group and the most challenging to influence. Some would need relatively little computer training; others are likely to require longer-term training and support. However, this group of claimants will most likely require persuasion or compulsion before they will use digital services, possibly with the threat of a benefit sanction for non-use. To provide this more intensive support, staff would require additional training to be able to run PC and internet training sessions for claimants. In addition, digital partners were viewed as a vital support. However, relationships and communications with Jobcentre Plus would need strengthening to include: a better understanding of the types of services that each organisation offers; a more structured system of claimant referrals; more effective follow-up of claimant referrals; and access to Jobcentre Plus digital services.

15 Introduction 5 1 Introduction 1.1 Background As part of the government s digital strategy, Jobcentre Plus is developing its future vision and transforming the claimant journey and experience through the provision of digital services. Digital services will be at the heart of the modern, multi-channel business, supported by smaller, expert face-to-face and telephone channels and re-designed streamlined products and services. Not only will digital services enable claimants to self-serve but they will also provide access to a wide range of information, support and other services. However, a recent Office for National Statistics (ONS) (2010) survey has indicated that there remains a digital divide between those who regularly utilise digital channels and those who remain less likely to access and use digital channels; these are the digitally excluded. PriceWaterhouseCoopers (2009) have suggested that there is a link between digital and social exclusion that is particularly pronounced for unemployed adults; a finding that is supported by comparing the ONS estimates of national internet usage with those of Jobcentre Plus claimants. While ONS estimate that 73 per cent of UK households have fixed line internet access, the most recent satisfaction survey among Jobcentre Plus claimants indicates that only two-thirds have regular access to the internet at home. Access to the internet at home varies considerably with age and type of benefit received (Howat and Pickering ). It is also clear that awareness of digital services does not necessarily correlate highly with usage. For example, evidence from the same survey found that, while 77 per cent of claimants were aware of the Jobcentre Plus webpages on DirectGov, only 51 per cent had used it (compared to 45 per cent Thomas et al ). Overall, Jobseeker s Allowance (JSA) claimants were more likely to be aware and to have used it. Moving online for digitally excluded claimants represents a step-change in the nature of their interaction with Jobcentre Plus services and research was therefore required to consider how best to engage these claimants with online services. 1.2 Research aims The overall aim of the research was to develop an actionable approach to encouraging Jobcentre Plus claimants who experience digital exclusion to use Jobcentre Plus digital channels. Within this overarching aim there were a number of research objectives. These were to explore: awareness and usage of Jobcentre Plus digital services; differences in attitudes and behaviours to digital services among different Jobcentre Plus claimant groups; how to address the barriers to digital channel usage by exploring views about actual and potential transactional digital services; the attitudes and role of Jobcentre Plus staff in the provision of information, signposting and support for digitally excluded claimants; 4 Howat, N. and Pickering, E. Jobcentre Plus customer survey DWP Research Report No Thomas, A et al. (2010) 2009 Jobcentre Plus Customer Satisfaction Research. Findings from quantitative and qualitative research. DWP Research Report No. 657.

16 6 Introduction digital partner organisations views about how Jobcentre Plus could support digitally excluded claimants, the support digital partners could provide and whether there is scope for partners to interact digitally with Jobcentre Plus on behalf of claimants (proxy use). 1.3 Research design The research comprised three stages: an initial design stage that comprised a review of the relevant literature and a set-up meeting with the Jobcentre Plus policy and research team. This was used to refine the overall design of the research study, establish a working definition of digital exclusion, define the interview topics and generate a list of digital services to be discussed with Jobcentre Plus claimants, staff and digital partners; a claimant insight stage that comprised face-to-face interviews with 80 Jobcentre Plus claimants who were defined as digitally excluded. The way in which the sample was constructed is discussed in Section 1.4. This stage was designed to explore: claimants overall response to online services, their views about current and potential Jobcentre Plus digital services; the support that they would require from Jobcentre Plus staff; and the behavioural triggers required for them to use digital services; a service review comprising telephone interviews with Jobcentre Plus staff, including Digital Champions (30), External Relations Managers (ERMs) (five) and external digital partners (five). The purpose of this component of the research was fourfold: to explore Jobcentre Plus staff experience, confidence and views about using and promoting Jobcentre Plus digital services; to investigate the role of Digital Champions in supporting Jobcentre Plus staff; to discuss with ERMs the plans, or potential plans, to co-ordinate Jobcentre Plus digital services with those of external organisations; and to explore how digital partners can support Jobcentre Plus in its mission to move more claimants online. The methods used in this research were qualitative. The purposive nature of the sample design means that the research cannot provide any statistical information relating to the prevalence of these views, experiences or reflections in the general population. Any attempt to provide numerical evidence of this kind would require an additional quantitative phase. 1.4 Research method Sampling approach Jobcentre Plus claimants The sample of Jobcentre Plus claimants was constructed to reflect those who were most likely to be digitally excluded; in terms of their location, their demographic characteristics and their access to the internet.

17 Introduction 7 The study was undertaken in four Jobcentre Plus districts. Two of these were selected to reflect urban and rural locations, the latter with lower than average levels of household internet access (ONS, 2010). For the purposes of anonymity the districts are referred to as A, B, C and D. The sample of claimants was constructed on the basis of what was already known about digitally excluded claimants; using Jobcentre Plus records as the sampling frame. In constructing the sample of Jobcentre Plus claimants, the following information was taken into account: the Oxford Internet Survey 2009, 2010 ONS data on internet use and the 2009 Department for Work and Pensions (DWP) survey of claimants undertaken by FDS International (2009) noted that the typical characteristics of digitally excluded claimants were likely to be: aged 55-64; living in remote areas with restricted internet access; disabled or have a health condition; receiving Income Support (IS), Incapacity Benefit (IB) or Employment Support Allowance (ESA); longer-term unemployed (three years or more); on a lower income, or in a lower socio-economic group; renting social housing (local authority or Housing Association); a childless household; without qualifications, or low level qualifications; or from an ethnic minority background. Freshminds and UK Online Centres (2007) have identified four different digital behavioural groups: digitally included, digitally determined, connected non-users and disconnected non-users. Within the digitally included group are the digitally constrained people who are digitally constrained by their level of skill and confidence. People who are digitally excluded may therefore either have no access to the internet, have access but do not use it, or have access but do not have the skills or confidence to use it. However, there is no standard definition of digital exclusion in terms of frequency of accessing the internet. A decision was therefore made to define digitally excluded claimants as those who have: no household access to the internet and never access the internet; or access to the internet but only do so between one and three times per month on average, and lack confidence in their IT abilities. To reflect a broad range of Jobcentre Plus claimants the following quota variables were used to construct the sample: Jobcentre Plus district. Ability to access the internet. Level of comfort in using the internet for information or transactional services. Age. Length of unemployment.

18 8 Introduction Previous type of employment. Whether they were disabled or had a health condition. The benefit they were receiving. Housing tenure. Whether they had dependent children. Ethnicity. For full definitions of each of these quota variables see Appendix A Sampling approach Jobcentre Plus staff The Jobcentre Plus staff participants covered a range of job levels, and included Digital Champions, as well as a mix of claimant facing and managerial staff. The staff sample was provided by Jobcentre Plus. A full breakdown of the Jobcentre Plus staff sample may be found in Appendix A Sampling approach ERMs and digital partners The ERMs were based in England, Scotland, and Wales. The digital partners included UK-wide organisations as well as nation-specific organisations. 1.5 Recruitment A sample of claimants living in the four study districts was provided by Jobcentre Plus. The sample was extracted on the basis of the quota variables discussed in Section However, Jobcentre Plus records do not hold information about internet use or confidence in using the internet, which were determined at the time of recruitment. The recruitment proceeded by invitation letters being sent to claimants (see Appendix A for a copy). Following a two-week opt out period claimants were telephoned by TNS-BMRB and asked if they would like to participate in the research. A screening questionnaire was used to determine their eligibility for inclusion in the research and to screen them for the quota variables that were not available from the Jobcentre Plus record. See Appendix A for a copy of the screening questionnaire. Following recruitment, claimants were sent a confirmation letter detailing the place and time of the interview and the name of the interviewer. For claimants to fully participate in the research they were asked during the screening process whether they had any additional needs, such as documents in large print. A Welsh-speaking researcher was also made available for Welsh-speaking participants. Jobcentre Plus staff, the ERMs and digital partner organisations were initially sent a courtesy letter informing them of the research. This was followed up with a recruitment telephone call to arrange a time for a telephone interview. Letter or confirmations were provided. 1.6 Fieldwork and analysis Interviews were structured using topic guides. The content of the topic guides varied according to the type of interviewee (claimant, Jobcentre Plus staff, ERM, digital partner).

19 Introduction 9 Critical to this research was a need to understand how to change claimants behaviour so that they become more engaged with Jobcentre Plus digital services. It is known from previous research that behaviour is shaped by personal, social and wider environmental factors. For example, at the personal level, behaviour may be shaped by the claimant s IT skills, confidence in using the internet, or beliefs about the security of the internet. At the social level behaviour may be shaped by family and friends beliefs and experiences, while at the environmental level it may be the internet facilities available locally or at Jobcentre Plus that may shape their behaviour (For a fuller explanation of this ecological approach to understanding behaviour, see Appendix B). The topic guides were therefore designed to explore claimants internet-related behaviour, probing topics that were suggested through the literature review and policy interests, and focusing on the mechanisms and triggers that may be required to change claimants internet behaviour. The claimant topic guides used: projective techniques (e.g. pen-portraits) to explore the perceived value of behavioural enablers to using Jobcentre Plus digital services; screen shots of relevant Jobcentre Plus websites to facilitate understanding of the structure and content of the website. These enabled an exploration of the features of a digital experience with Jobcentre Plus with claimants who had not used digital services; and focused on the use of transactional services rather than simple information gathering. See Appendix C for copies of the topic guides and stimulus materials. Claimant interviews were all undertaken face-to-face, usually in the claimant s home. Interviews were undertaken between April and June 2011 and generally lasted around 60 minutes; although some interviews were shorter due to participant health issues. Jobcentre Plus staff, ERMs and digital partners were all interviewed by telephone. Interviews lasted between 45 and 60 minutes and were undertaken during the fieldwork dates above. All interviews were recorded using encrypted digital recorders prior to verbatim transcription and analysis. All the interviews were analysed in a structured and comprehensive way using a thematic analytical method Matrix Mapping (see Appendix B for details). To consider the most effective behavioural drivers for change and the triggers that may be necessary to move Jobcentre Plus claimants online, the claimant interview material was further analysed using a social marketing approach that is based on four primary mechanisms to change people s behaviour. The four mechanisms are: educate making people aware; persuade helping people to understand that an issue is worth caring about and has relevance for them; design changes to the environment that are necessary to bring about behavioural change; and control the introduction of mechanisms that might regulate or compel certain types of behaviour. This approach is used later in the report to demonstrate that different types of mechanisms are needed to encourage Jobcentre Plus claimants to use digital services. For a fuller description of this analytical approach see Appendix B.

20 10 Introduction 1.7 Sample overview Table 1.1, provides an outline of how the 80 Jobcentre Plus claimants were distributed in terms of their internet usage. Table 1.2 shows the number of Jobcentre Plus staff interviewed by their job band. A full demographic breakdown of Jobcentre Plus claimants and a further breakdown of Jobcentre Plus staff may be found in Appendix A. Table 1.1 Achieved sample of Jobcentre Plus claimants Internet usage Access to the internet Never Irregular Total Easy access at home Easy access somewhere else/mobile phone Difficult to access No access 8 NA 8 Level of comfort with using the internet Not comfortable with using any online services Only comfortable with finding information Total Table 1.2 Achieved sample of Jobcentre Plus staff Jobcentre Plus district A B C D Total Band B (Assistant Advisers) Band C (Advisers) Band C (Digital Champions) Band D/E (Jobcentre Plus Managers) Total Report structure Following this introductory chapter, the report comprises five chapters, as follows: Chapter 2: describes the digital landscape by considering Jobcentre Plus claimants awareness and views about current Jobcentre Plus digital services, together with the support that Jobcentre Plus staff are currently able to provide. Chapter 3: focuses on views about a range of digital services that could be provided by Jobcentre Plus from the perspectives of claimants, Jobcentre Plus staff and digital partners. The chapter also considers claimant preferences for a range of digital services. Chapter 4: explores, using a behavioural framework, how to engage different types of claimant in Jobcentre Plus digital services; as well as the digital services that may address the needs of specific types of claimant.

21 Introduction 11 Chapter 5: describes how claimants may be supported in their migration to digital services by Jobcentre Plus staff and digital partners. Chapter 6: summarises the findings and considers the types of digital services and the behavioural mechanisms required to engage digitally excluded claimants, together with Jobcentre Plus staff training required to support claimants. The report findings are evidenced with quotations taken from the verbatim transcripts. These quotes are attributed in the following way: staff role, whether Digital Champion and district (e.g. Assistant Adviser, Digital Champion, district D); claimant benefit claimed, district, age, amount of time unemployed (e.g. JSA claimant, district D, years old, less than six months unemployed).

22 12 The digital landscape 2 The digital landscape As discussed in Chapter 1, some of the needs of digitally excluded claimants in relation to digital services are well-known (Dutton et al., 2009; Ofcom, 2009; Freshminds and UK online centres, 2007; 6 ) and include: increased support; increased access to online services; improved literacy and IT skills; enhanced motivation; improved communication skills; and managing security issues. The variations between different claimants and how Jobcentre Plus can most effectively address these needs within the available resources are less well-known. This chapter provides an overview of the landscape in which digital needs are located. It starts by discussing claimant awareness of current Jobcentre Plus digital services (Section 2.1), followed by a summary of the provision of support available to claimants (Section 2.2). 2.1 Claimant awareness of Jobcentre Plus digital services In April 2010, the Jobcentre Plus website closed and its content and functionality switched to the Directgov website 7. The Directgov website has information about Jobcentre Plus services and benefits (informational use) as well as the option to apply for Jobseeker s Allowance (JSA) online (transactional use). To make an online application, claimants have to enter their personal details. Overall awareness of the Jobcentre Plus online services was low among the digitally excluded claimant interviewees; particularly those in receipt of Incapacity Benefit (IB), Income Support (IS) and Employment Support Allowance (ESA) benefits (in spite of the website address appearing on Jobcentre Plus correspondence). In addition, there was minimal awareness that the Jobcentre Plus content was now hosted by Directgov website. Access was most likely to be the result of using an internet search engine rather than entering a website address. This was not unexpected, especially given the target audience. The usage of the current services was as follows: online job search most often used service; information about benefit entitlements, benefits adviser and JSA online minimal usage; and online claims none of the participants in the study had made a claim online. The greater number of JSA claimants accessing the website aligns with the findings of the Jobcentre Plus satisfaction survey outlined in Chapter 1. This may be due to more regular contact with 6 A recent piece of qualitative research conducted on behalf of the Department for Work and Pensions (DWP) on Jobcentre Plus claimant views on a proposition being developed for automated service delivery (ASD) of JSA. 7

23 The digital landscape 13 Jobcentre Plus staff, with those participants who had previously used digital services, identifying their Assistant Adviser as directing them to use these. 2.2 Current provision of support to claimants by Jobcentre plus staff This section describes how support is currently provided across the Jobcentre Plus claimant base, and explains the context in which that support is delivered. Contextual factors discussed are: the time allocated for adviser claimant contact; the range of staff knowledge and familiarity with digital platforms; technical restrictions on what can be done by advisers; and advisers concerns regarding how increasing digital services would affect service provision The time allocated for adviser claimant contact Staff contact with claimants was determined by the benefit received and the requirements which the claimant must fulfil. JSA claimants have more regular contact with Jobcentre Plus than do lone parents in receipt of IS, or IB/ESA claimants. Accordingly, JSA claimants have greater access to Jobcentre Plus support, but also have greater conditionality in terms of searching for employment. According to staff, as part of the drive to create a more active benefits system, additional conditionality is being extended to the ESA and lone parent claimants (although lone parents will still have varying conditions). At the time of this research, JSA claimants attended fortnightly appointments with their adviser, while lone parents were only required to attend once every six months (and even this was flexible). Staff expressed concern about the limitations on what could be achieved during the allocated time with claimants, although the amount of time per claimant did appear to vary between advisers. There was a general sense that the time limitation prevented advisers from teaching claimants essential computer skills or demonstrating the Directgov website....the adviser s time is very limited in terms of what they can do during a particular interview, so that s not the sort of help we can offer. (Team Manager, district D) To be honest in my job you only really get about five minutes with the claimant so it would be quite hard for us to go through what we ve got to do and then start using the online services... and maybe if you did have the time you d be able to show them like the Directgov and point them in the direction of which way to go. The majority of the time you don t actually have the time to be doing stuff like that. (Assistant Adviser, district A) An alternative view expressed was that it was possible to demonstrate some basic functions to claimants; however, this view was not prevalent. Oh I do sometimes, just to show them what is involved you know. Some claimants come back sometimes and say Oh I tried to get onto Directgov, couldn t find what I was looking for or they will say things like Oh well I tried a search and it only came up with a handful of jobs, I couldn t see anything that was suitable so I will go on that with them and show them how to do the search properly to bring up all the jobs, and then they say Oh that s how it s done. (Adviser, district C)

24 14 The digital landscape If a need for further support was identified and this was outside of the adviser s capacity, digitallyexcluded claimants would be referred to either another adviser or an external source of support such as local councils, training providers and charities. We don t have time with an interview to teach people how to search Google and find certain things. We can show them very quickly how it works so that they know it s there, but then we would have to direct them on so that they actually gain the knowledge in how to do it themselves elsewhere. (Adviser, district A, Digital Champion) A number of tensions were highlighted which impacted on the ability of staff to provide encouragement and support for digitally excluded claimants, including a tension between: adhering to the allocated interview slot (and thereby meeting throughput targets) and concurrently providing sufficient support; and effective use of staff time and capturing the interest of the claimant when they are likely to be at their most receptive. In general, it was considered unrealistic to expect staff to individually instruct claimants about online digital services, particularly claimants who are digitally excluded with minimal IT knowledge. However, the provision of informal support by advisers for claimants with medium to high IT skills was viewed as more feasible, given increased appointment time and adviser capacity. Alongside this, claimants requiring more intensive help could continue to be referred to other sources of support. One adviser pointed out that claimants do not come into the Jobcentre looking for information on digital services; they are much more likely to be concerned with their benefit claim and/or finding a job. Staff felt that advisers could promote the service to all elements of the digital spectrum, though the degree to which they can do this is constrained, mainly by time, but also by staff knowledge Staff knowledge and familiarity with digital platforms On the whole, staff members were aware of Jobcentre Plus digital services, although more detailed knowledge of their content and functionality varied. Knowledge ranged from simply knowing the website address, through to in-depth familiarity with the website s content, functionality, and potential challenges for users. Confidence in explaining the digital services to claimants varies, with the suggestion of a need for staff training. I think that the staff that aren t confident with it are going to be the ones that aren t as confident in showing it to claimants because there s a feeling, they are outside their comfort zone and not going to understand really what they are talking about, which I think they would be more reluctant to try and promote it with claimants in case they get questioned on it really. (Adviser, district A) It is interesting to note that, although staff were asked about various platforms (PCs, smart phones, digital TV, games consoles), responses were almost exclusively confined to computers/the internet, as these were platforms with which they were most familiar.

25 The digital landscape Technical or legalistic restrictions Advisers highlighted that technical and/or legal limitations restrict their ability to offer support to claimants...there is quite a strict policy on what you can and can t look at. (Adviser, district A) Personal information was one particular issue often raised with regard to limitations faced by staff. For example, a Team Manager mentioned that some staff are a bit cautious, because they are not permitted to forward documents containing personal information on behalf of claimants such as application forms or CVs. We are not able to send certain claimant details over even though they can be sent to us which I think is a bit behind the time really. (Team Manager, district A) Restrictions placed on handling personal information were seen to hamper support provided to claimants, particularly when compared with other recruitment agencies. And a CV is full of personal information. So it s which bits do you take off that aren t going to affect the CV to forward to the employer? And it s having that online contact between Jobcentres and employers where I don t think we have that at the moment, but in your competition (i.e. your recruitment agencies and your online websites), that s what they re doing all the time. (Team Manager, district A) As an example of how restrictions can hamper support, an adviser highlighted that it is not possible to access a number of external websites which could potentially be useful to them....a lot of websites are blocked, so it is difficult to advise a claimant on how to access a website when you physically can t show them the process. The same with s, a lot of claimants don t have an set up and we can t do that with them because they can t access those sites, and they don t know how to attach a document to an so that can be tricky, because we can t really show them those things directly, I have to refer them somewhere to get that advice. (Adviser, district A) Advisers concerns about the impact of a move to digital services For the most part, staff accepted a move toward digital services was inevitable, highlighting numerous benefits for example, access to job searching tools. At the same time, concerns were raised about the impact of the drive for digital usage on their role, and on the quality of the service provided to claimants. Staff were more resistant to increasing digital services if they saw it primarily as a means to reduce costs for Jobcentre Plus and allied to this, concerns were raised about what this would mean for claimants who needed greater levels of support. Staff were more positive about digital services if they felt that this would be a more efficient way of delivering the service for the whole claimant base, while at the same time ensuring proper levels of support across the claimant groups. It was felt that the provision of online services could potentially allow advisers to dedicate more time to supporting those in need.